新中国成立以来乡村教师生活待遇的政策变迁——基于历史制度主义的分析

Policy changes in the living treatment of rural teachers since the founding of the People’s Republic of China:analysis based on historical institutionalism

新中国成立以来,乡村教师生活待遇政策从初创、改革、发展到深化的变迁历程中呈现出四个阶段性特征:工资补助以实物拨付,福利待遇实行统包制;解决工资补助拖欠问题,福利待遇趋向市场化;关注工资补助倾斜力度,福利待遇迈向法制化;工资补助“提标扩面”,福利待遇趋于规范化。基于历史制度主义的分析范式对新中国成立以来乡村教师生活待遇政策的变迁历程进行检视可发现:经济体制与财政投入影响乡村教师生活待遇的政策走向,管理体制变革促进乡村教师生活待遇政策的调整与革新,文化观念转变使乡村教师生活待遇政策由“潜藏”走向“明朗”。新中国成立以来我国乡村教师生活待遇政策呈现出制度微调、制度置换、制度断裂三种变迁样态。与此同时,“学习效应”“协调效应”、初始成本与政策过程的“黑箱”现象使乡村教师生活待遇政策在变迁历程中具有一定的路径依赖特征。未来在制定乡村教师生活待遇政策时应关注政策环境因素,提升政策设计的前瞻性和民主性,在突破路径依赖中寻求政策革新。

Since the founding of the People’s Republic of China,the rural teachers’living treatment policy has shown four stages of development from infancy,reform,development to enhancement:wage subsidies are allocated in kind,and welfare benefits are in unified implementation;wage subsidy arrears are solved,and welfare benefits tend to be market-oriented;attending to the tilt of wage subsidies,and welfare benefits tend to be legalized;wage subsidies are“raised and expanded”,and welfare benefits tend to be standardized.Based on the paradigm of historical institutionalism,a review of the changes in rural teachers’living treatment policy since the founding of new China reveals that the economic system and financial input have influenced the policy orientation,the reform of the management system has promoted the adjustment and innovation of the policy,and the change of cultural concepts turned the policy from“latent”to“explicit”.Since the founding of new China,China’s rural teachers’living treatment policy has undergone three types of changes:institutional fine-tuning,institutional replacement,and institutional fracture.At the same time,the“learning effect”,“coordination effect”,initial costs,and the“black box”of the policy have led to certain path-dependent characteristics of rural teachers’living treatment policy in the course of change.In the future,when formulating the policy for rural teachers,we should pay attention to the policy environment,improve the foresightedness and democracy of policy design,and seek policy innovation while breaking the path dependency.